http://www.itebe.org/telechargement/textesconferences/BE2004/0304-MATFAO

Salon International – BOIS ENERGIE 2004 Programme des Conférences

Le rôle des services forestiers vis à vis du développement du bois-énergie Contraintes et barrières principales Miguel Angel Trossero Programme bois énergie Département des forêts FAO - Rome

Lons le Saunier - France

Samedi, 3 Avril 2004

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Salon International – BOIS ENERGIE 2004 Programme des Conférences

Pourquoi adresser ces aspects?

Pour assurer un rôle plus actif aux services forestièrs dans l’utilisation durable du bois comme source d’énergie et … fournir une contribution au développement du secteur forestier améliorer la gestion du territoire promouvoir la protection de l’environnement réduire la pauvreté … …essentiellement dans les pays du tiers monde

Lons le Saunier - France

Samedi, 3 Avril 2004

Building a more favourable institutional and policy frameworks for wood energy Wood energy issues are intimately inter-sectoral and multi -disciplinary, involving forestry, energy and agricultural sectors. This intersectoral character has been historically one of the main constraints to the political recognition of wood energy and to the formulation and implementation of sound policies, since each sector refers to a different ministry and pursues and independent agenda. A larger involvement of the private sector, particularly for manufacturing, marketing, financing, installing, operating, and maintaining systems is needed. Larger public financing through the granting of energy concessions, public-private partnerships, incentives, and in R&D is also needed. Financing is critically important because initial cost is frequently an overwhelming barrier in the poorer sectors of DC. Finally, securing local communities their rights and equitable arrangemen ts with respect to the land devoted to bioenergy production is crucial.

The second task was to flesh -out what policies, regulations, legislation, rules and standards have been crafted to ensure the sustainable production, conversion, marketing and use of wood as fuel. This is a necessary objective since bioenergy system is a complex on e in as much as it includes a multi -faceted production process from preparation of raw materials, ha rvesting, grinding, transportation, conversion of raw materials into fuel, distribution and eventual consumption.

Country research commitments, laws and regulations and the suppo rt mechanisms that are in place reflect the interest that they have in the sector of bioenergy. Consequently, to understand deeply the interests that European countries have in bioenergy it is necessary to understand local, national, and European policies, which are as a matter of fact the framework within which objectives and targe ts are set.

They are implemented through a large number of mechanisms such as regulation, taxation, grants, and subsidies. Policies likewise determine the direction and scale of research and development programmes.

The objective of this study is to get an overview of the legal a nd institutional instruments regulating this sector and to disclose the specific institutional and legal issues affecting the wood energy sector and its development. It thoroughly reviews the diverse legal instruments and institutions dealing with wood -energy in sub-Saharan African countries.

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Salon International – BOIS ENERGIE 2004 Programme des Conférences

Quelles sont les caractéristiques de la filière bois énergie?

60% de la production forestiere mondiale 10% de la consommation mondiale d’énergie Utilisation commerciale et industrielle Seule source d’énergie pour 2 billion de pauvre…

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sécurité alimentaire et santé

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revenus, emplois et développement

Faiblesse institutionnelle et politique Manque de capacités nationales Lons le Saunier - France

Samedi, 3 Avril 2004

Main facts characterizing the current wood energy situations Wood energy systems are complex with many technical disciplines involved in the production, harvesting, transportation, trade use and conversion of woodfuel into energy Woodfuel …. : Wood fuels account for 60% of global forest products consumption. WF is an major forest product ….. Its use can lead to forest depletion (charcoal?).

Wood energy …. accounts for 7-9 % of energy consumed worldwide, and for up to 80% in some DC is rarely included in forestry and energy policies Poverty and health: Being the most important source of energy for cooking in poor households, woodfuels contribute to food security. Woodfuel use is “part and parcel” of poverty. High levels of indoor air pollution affecting women and children.

Food security: The majority of urban abd rural poor in DC rely on wood-fuels as they are locally available, reliable and also adapted to the conditions of traditional cooking Productive uses: A large fraction of small industries (street food, pottery, bakeries, ertc .) in DC depend on wood energy. These industries are labor intensive and create local income opportunities, particularly f or women Policies and institutions: The provision and use of wood energy involve multiple stake-holder and multiple purpose systems, that cut across socio-economic groups and rural-urban interfaces. Therefore, the collaboration of technical and political actors from fores try, energy and agricultural sectors is required.

Fragmentation of responsibilities and lack of coordination.

National capacities: Few countries and regions have skilled human resources and infrastructure in wood energy Lack of trained human resources on wood energy issues. Wood energy systems are poorly understood.

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Salon International – BOIS ENERGIE 2004 Programme des Conférences

Les défis • Renforcer le rôle du BE dans l’AFD et la RP • Diversification plus rationnelle du secteur forestier • Promouvoir BE comme option énergétique propre • Appuyer les initiatives du secteur privé • Adresser les besoins du secteur privé

*AFD = Aménagement forestier durable Lons le Saunier - France

RP = Réduction de la pauvreté Samedi, 3 Avril 2004

AFD = SFM RP = PA poverty alleviation

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Salon International – BOIS ENERGIE 2004 Programme des Conférences

Qu’ y a-t-il de nouveau ?

Johannesburg a recommandé de réduire la pauvreté et de protéger l'environnement • Augmenter la consommation des énergies renouvelables

• Favoriser l’accès à l’énergie pour les pauvres • Moderniser l’utilisation de BE par les pauvres

Dans certain pays, • BE commence à recevoir une reconnaissance politique

• Il y a une grande connaissance/expérience accumulée • BE deviens toujours plus compétitif Lons le Saunier - France

Samedi, 3 Avril 2004

RP = PA= poverty alleviation/reduction et PE = EP= environemental protection What is new at international level….

The representatives of the countries of the world, assembled at the World Summit on Sustainable Development (WSSD) in Johannesburg, South Africa from 2 -4 September 2002, reaffirmed their commitment to sustainable development through “The Johannesburg Declaration on Sustainable Development” and specifically addressed the bioenergy issue in several parts of the WSSD Plan of Implementation (PI), emphasizing that “access to energy facilitates the eradication of poverty”.

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Salon International – BOIS ENERGIE 2004 Programme des Conférences

Contraintes et barrières principales Techniques Économiques Sociales Environnementales Institutionnelles… … qui freinent la réalisation des systèmes

durable de BE et l’utilisation de ses potentialités Lons le Saunier - France

Samedi, 3 Avril 2004

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Salon International – BOIS ENERGIE 2004 Programme des Conférences

Barrières Institutionnelles Politiques; sont inexistantes Légales; régulations sont inexistantes ou faibles Institutions techniques; ne sont pas bien préparées Institutions privées; sont aussi mal préparées Lons le Saunier - France

Samedi, 3 Avril 2004

•Institutional barriers at national level •Policies: Policies serve as the framework within which objectives and targets are set at the national and regional levels.

Woodfuel are often neglected in political, economic and social agendas; •Technical institutions (Forestry services) regulating woodfuel production and trade as well as wood energy use (Energy agencies) are often insufficiently prepared to overcome wood energy problems This category includes large public financing for granting wood energy concessions, public-private partnerships, incentive, In fact, financing is critically important because initial cost is frequently an overwhelming barrier in the poorer sectors of DC. •These organisations have not been properly involved in the energy-related international negotiations of CSD or the Millennium Development Goals • Reliable national resource and production data on biofuels to s upport policy making processes is often not available; Wood energy systems are complex with many technical disciplines involved in the production, harvesting , transportation, trade use and conversion of woodfuel into energy •Fewer resources for R&D, particularly in developing countries.

•A larger involvement of the private sector, particularly for manufacturing, marketing, financing, installing, operating, and maintaining systems is needed.

•Securing local communities their rights and equitable arrangements with respect to the land devoted to bioenergy production is crucial.

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Salon Salon International International –– BOIS BOIS ENERGIE ENERGIE 2004 2004 Programme Programme des des Conférences Conférences

Barrières Politiques Sensibilisation politique encore très basse …

Politiques forestières et énergétiques faibles,très fragmentées Programmes et projets dispersés (manque de masse critique) Communications & collaboration limités entre les acteurs publiques et privés Lons le Saunier - France

Samedi, 3 Avril 2004

Policies serve as the framework within which objectives and targets are set at the national and regional levels. Unfortunately, woodfuel and wood energy are often neglected in political, economic and social agendas The provision and use of wood energy involve multiple stake-holder and multiple purpose systems, that cut across socio-economic groups and rural urban interfaces. Therefore, the collaboration of technical and political actors from forestry, energy and agricultural sectors is required.

The political awareness on wood energy is low and at higher political level wood energy generally fails to be listed among forestry priorities.

Consequently, in most cases wood energy policies are weak.

Both forestry, energy and environmental sectors pay limited attention to wood energy issues. In fact, policies, strategies and projects for wood energy development are being planned, designed and formulated at various levels. They are fragmented and scattered Policies, strategies and projects development are scattered ; These sectors have not been properly involved in the energy -related international negotiations of CSD or the Millennium Development Goals and other recent global issues such as globalization, environmental pressures, restructuring of the energy sector and fears about sustaina bility.

Communication & collaboration between political and technical (public and private) stakeholders is poor The collaboration of technical and political actors from forestry, energy and agricultural sectors is required.

POOR COLLABORATION!!!

POOR COMMUNICATION & INTERRELATIONS PARTNERSHIPS !!!

This political invisibility has pre-empted more effective actions towards warranting a sustainable use of woodfuels. It is needed: •Role and contributions of wood energy poorly understanding •Strong and long-term political commitment is essential for the creation of regulatory, legal and institutional frameworks that encourage all stakeholders to play their respective role in the development process of wood-energy.

Implementation of legislation and policies might also be more ef fective when the different users (private and public entities, l ocal population, etc.) are aware of the necessity to manage the natural resources in a sustainable way and the dangers and consequences that bad management could provoke, but are also aware of their rights and obligations. Therefore, increasing the awareness, provision of information and education of these users is an important issue.

•Strong and long-term political commitment is essential for the creation of regulatory, legal and institutional frameworks that encourage all stakeholders to play their respective role in the development process of wood-energy.

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Salon International – BOIS ENERGIE 2004 Programme des Conférences

Barrières Légales Lois sur BE manquantes … restrictives, fragmentées et à court terme Législations nouvelles souvent en conflit avec les traditions et coutumes Entrepreneurs affectés par des régulations insuffisantes, inefficaces et inadéquates Acteurs principaux mal considérés Lons le Saunier - France

Samedi, 3 Avril 2004

Policies need legislation and regulations to ensure sustainable production, marketing, and use of biomass as fuel are implemented through mechanisms such as laws, taxation, grants and subsidies. Wood energy is a very complex system, which includes many phases: production, preparation, transportation, and conversion of raw materials for distribution and utilisation to final consumers. OECD On the legal aspect there are country -to-country variations. Environmental planning laws, incentives for bioenergy production, utilisation and conversion, subsidies, dec entralised electricity systems, standardisation of fuels, taxation, land tenure, energy laws – these are examples of laws and policies promulgated among a number of the countries under study. Financial regulations and government incentives, which deal with investments and services in renewable energy, are also available in some cas es.Even from legal view point, wood energy is rarely addressed by s pecific legislative instruments, as pointed out clearly in the regional study for Africa. Forestry laws address, sometimes, woodfuels aspects while Energy laws are focussed almost exclusively on oil, gas, petroleum and electricity. Moreover, in Africa at least, the legislative instruments pay insufficient attention to the usage rights of local communities, which originates conflicts between the modern legislative regime and customary laws. These conflicts have strong negative impacts on the developm ent of formal wood energy enterprises and on the sustainable management of wood resources.

Wood energy laws are also fragmented and restricitves ; New laws must be preapred consdiering the multidisciplinary character of WES •Legislative instruments pay insufficient attention to the rights of local communities, •Conflicts between the modern legislative regime and customary laws.

•Conflicts affect the development of wood energy enterprises •Conflicts affect also the sustainable management of wood resourc es.

•Drafting new wood-energy legislation is complicated by its marked inter -sectoral character.

Drafting new wood-energy legislation is complicated by its marked inter-sectoral character Many good examples in OECD countries Also good examples of improved legal and institutional regulation of wood-energy policies have been implemented by Brazil, Niger and Mali. These policies are an example that could be followed by other Dg countries. They aim to improve the management and exploitation of natural forests with a view to supplying wood-energy to the main cities, to facilitate the participation of the populations of the forestry areas and to re-establish the rural communities in their management and control of property rights over the local forestry resources. The policies pay much attention to the collaboratio n and coordination between different sectors.

Generally speaking, the laws analysed include restrictions on the exploitation of the wood-energy resources for environmental reasons. Depending on the condition and potential of the forest concerned, limits on property and usage rights of the local populations might be imposed. The exploitation of wood used for commercial and industrial purposes is regulated by exploitation, cutting and gathering permits, transport and circulation permit s and the obligation to follow management plans. The requirement of permits and the obligation to follow management plans allow the governments to control the sustainable exploitation of wood resources.

The creation of regulatory, legal and institutional frameworks which encourage local communities, the public sector, civil society, the private sector and international backers to play their respective roles in the development process of wood -energy is an area which needs long term commitment. To release the potentials of the actors involved in development and to use thei r resources in an optimal and efficient way, better follow-up and better coordination of their activities represent important aspects.

Some barriers specific to the legislative aspects of wood -energy have been encountered. The first barrier concerns the lack of enforcement of the specific provisions dealing with wood -energy. The second barrier is the conflict existing, in most countries analysed, between the modern legislative regime, restricting and penalising access by local people to woodfuels, and the customary law, which has for a long time regulated this common property in a flexible and harmonised way. Therefore, considerable attention should be paid to the provisions recognising real property and usage rights to the communities.

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Salon International – BOIS ENERGIE 2004 Programme des Conférences

Limitations des services forestiers Rôles et contributions de la filière BE mal compris Assignation des priorités/ressources entre bois de service et BE très déséquilibrée • •

Revenus non réinvestis dans la filière Fonds pour la R&D insuffisants

Capacités techniques insuffisantes Interrelations entre serv. forestiers & énergétiques limitées Ressources humaines limitées Responsabilités techniques dispersées Lons le Saunier - France

Samedi, 3 Avril 2004

Technical agencies, as well as, governments, ministries, administrative offices of OECD countries are involved in the developmen t, implementation and monitoring of policies, strategies and projects that concern wood energy. However, in most of dg cs is noted that A broad spectrum of capacities is needed to acquire the necessary information, conduct techno-economic analysis, design a biomass energy initiative, organise communities, and mobilise the necessary actors to design, manufacture, market, and finance the required technologies, rovide quality control and service, and promote appropriate policies. Building this technological, entrepreneurial, and policy -making capacity is an extensive process, involving educational initiatives, participatory approaches, public outreach, and training for pros pective entrepreneurs, policy -makers and rural inhabitants.

Technical responsibilities are fragmented. Wood energy has two main legs, one with forestry services and the other one with energy agencies. Lack of an inter-sectoral and coordinated approach between the sectors involved. It is im portant that clear responsibilities and obligations are establis hed between the various sectors. Once this is established, a collaborative, inter-sectoral approach with links between the forestry and energy sectors is urgently needed, along with mechanisms for the joint implementation of policies to introduce and improve the performance of wood-energy systems Technical capabilities at the national, regional and international of both public and private sectors of forestry and agricultural agencies are insufficiently prepared for the promotion, development and implementation of bioenergy initiatives; Relations between forestry, energy organizations, etc. at national and international level are weak To offset the fragmentation of responsibilities discussed above, in some few countries are already established inter-agencies steering committees (or national observatories) formed by representatives from forestry and energy institutions as well as from rural development and agricultural sectors to deal with woodfuel and wood energy matters.

Systematic collaboration arrangements between forestry and energy sectors in this field is not easily encountered Approaches still existing authoritarian systems and the measures taken from the “top down”. Such an authoritative approach is usually rejected by those submitted to it. The institutional approach could be improved by adopting a participative approach. Participation of territorial decentralised collectivities , village communities and the private sector in the shaping, managing and implementation of the wood-energy regimes facilitates enforcement of the laws and policies.

Human resources are limited (expertise and information needed) Few countries and regions have skilled human resources and infrastructure in wood energy Contributions of wood energy is poorly understood New knowledge need to be generated Poor forest management, weak policies, inadequate price structure, inadequate allocation of concessions and products, insufficient investments, which combined with their over exploitation jeopardize the sustainability of the valuable natural resources Wood energy-related financial resources limited gathered from the permits, fees and revenues, are not reinvested in the forestry and energy sectors.

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Salon International – BOIS ENERGIE 2004 Programme des Conférences

Limitations du secteur privé Faibles capacités des entreprises (forestiers et BE) Incitations insuffisantes pour la réalisation des initiatives BE inexistantes Personnel sans formation appropriée BE pas suffisamment intègré dans les programmes d’éducation et de formation Programmes de sensibilisation insuffisants Faible partenariat entre les acteurs Lons le Saunier - France

Samedi, 3 Avril 2004

National, regional and international capabilities of both public and private sectors of forestry agencies are weak; Incentives on wood energy for the promotion, development and imp lementation of bioenergy initiatives are unavailable; Lack of human resources trained on wood energy issues Wood energy is rarely integrated in existing forestry/energy curricula Lack of adequate educational and technical materials Lack of tools and methods for the development and implementation of wood energy programs

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Salon International – BOIS ENERGIE 2004 Programme des Conférences

Conclusions Augmenter la sensibilisation politique Établir politiques spécifiques sur différents aspects de la filière Adopter une législation plus spécifique et appropriée Supporter les initiatives du secteur privé, +participation et éducation Donner des priorités à la filière BE dans les services forestiers Développer des programmes inter-institutionnels Améliorer le partenariat au niveau national et international Renforcer la génération & distribution des informations Lons le Saunier - France

Samedi, 3 Avril 2004

Political awareness increased Policies: Specific Policies on wood energy are needed Legal: New laws must be prepared …..

Institutional: intersectoral programmes need to be developed Private sector: Need incentives, more participation and better e ducation Partnerships Relations with internal and external partners enhanced collaboration btw technical and political actors … networking Information generation & dissemination should be enhanced

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